An Overview of Regional/Subregional Environmental Cooperation in Asia and the Pacific* Kazu Kato & Wakana Takahashi

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An Overview of Regional/Subregional Environmental Cooperation in Asia and the Pacific* Kazu Kato & Wakana Takahashi An Overview of Regional/Subregional Environmental Cooperation in Asia and the Pacific* Kazu Kato & Wakana Takahashi [Contents] 1. Introduction 2. The Need for Promoting Regional Cooperation 3. The Current Status of Multilateral Initiatives on Environmental Cooperation 4. Prospects for Future 5. Policy Recommendation [Summary] Regional and subregional programmes on environmental cooperation have been strengthened and accelerated in Asia and the Pacific, particularly since around the time of UNCED, 1992. However, the effectiveness of such cooperative efforts remains uncertain, and the outlook for future development is unclear in many cases. What steps need to be taken to improve the situation and to further promote regional cooperation toward sustainable development? The answer depends on different cooperative schemes and mechanisms in each subregion. Thus, this paper takes up the two specific cases of subregional cooperation in Southeast Asia and Northeast Asia (the former being more established and the latter now slowly taking shape), together with a more generalized picture of environmental cooperation in the Asia- Pacific region as a whole, and explores the problems and possibilities for promoting environmental cooperation. In Northeast Asia, where several programmes have been independently developed, a systematic relationship among all the initiatives will create a synergy for strengthening cooperation among the various forums and programmes in future. On the other hand, in Southeast Asia, where a comprehensive and strategic environmental action plan already exists, it might be suggested to give a sharper focus on its priority areas of action and to secure funding necessary for the implementation of those programmes and projects. 1 Introduction During the 1992 United Nations Conference on Environment and Development (UNCED), the world reached a global consensus that integration of environment and development is essential in responding to the threats of deterioration of ecosystem, worsening poverty, and perpetuation of social disparities. Since most environmental problems brought about at regional and global levels are rooted in human activities taking place at local and national levels, appropriate national strategies, policies, plans and processes are crucial in achieving the tasks. Nevertheless, as clearly stated in Agenda 21, no nation can achieve the tasks on its own, but only in close collaboration and good partnership with the United Nations, other international, regional and subregional organizations, local governments, and with broad public participation. The term “environmental governance” refers to processes through which domestic and * This paper was originally presented at ECO ASIA Long-Term Perspective Project (LTPP) 7th International Workshop, 22-23 Feb. 2000, Shonan International Village, kanagawa, Japan. The paper was revised and submitted to Regional Review Meeting in Preparation for the Ministerial Conference on Environment and Development in Asia and the Pacific, 9-10 May 2000, Bangkok, Thailand. international society deals with environmental problems. Since 1992 environmental governance structures in Asia and the Pacific have changed dramatically. It is important to examine the changing nature of environmental governance in the region and its implications for environmental outcomes1. Thus, the Environmental Governance Project of the Institute for Global Environmental Strategies (IGES) explores ways and means of improving environmental governance systems at local, national and regional levels in the Asian region. The Project has endeavored to systematically analyze environmental governance structures and processes within the region. More specifically, the Project examined several national environmental governance systems in a cross-sectoral and comparative manner by drawing out general features of each governance structure, as well as through case studies of three selected issues: water and marine pollution; air pollution and climate change; and deforestation. In addition, the Project is conducting studies of regional and sub- regional programmes for environmental cooperation, focusing on the three issue areas. This paper presents the tentative results of research carried out so far on sub-regional and regional mechanisms for environmental cooperation. Since the Asia-Pacific region, which comprises about 40 countries, is characterized by the extent of its geographical scope and the diversity of economic and political systems, collaboration at subregional levels is emphasized by many international and regional organizations. For example, UNEP’s Regional Office for Asia and the Pacific (UNEP/ROAP) places one of its priorities on subregional environmental cooperation, and has endorsed the South Asia Co-operative Environment Programmes (SACEP), the environmental action plans facilitated by the Association of Southeast Asian Nations (ASEAN), the Mekong River Commission (MRC), and the South Pacific Regional Environment Programme (SPREP) and has assisted them in the further development of action plans, based on an assessment of the state of the environment in each subregion2. As a result, there is now a multitude of cooperative environmental programmes and action plans in the Asia-Pacific region, and new ones are still emerging. Yet, the effectiveness of such cooperative efforts remains uncertain, and the outlook for accomplishing their tasks is unclear in many cases. Thus, in Sections 1 and 2 this paper first returns to questioning why environmental cooperation at regional and subregional levels is needed. In Section 3, the current status of multilateral initiatives at subregional and regional levels is examined. Next, Section 4 is devoted to discussing prospects for the future. Finally, in the concluding section, a few suggestions are made to further promote regional environmental cooperation, focusing on the two subregions of Northeast and Southeast Asia. 2 The Need for Promoting Regional Environmental Cooperation Over the past two decades or so, regional and subregional environmental cooperation has been gaining momentum all over the world. The need for promoting such cooperation has arisen from several sources, as follows. First, it should be pointed out that industrial and economic development is often accompanied 1 Miranda A. Schreurs, “An Analytic Framework for a Comparative Study of Environmental Governance in Asia,” in IGES Environmental Governance, Country Reports on Environmental Governance in Four Asian Countries, P.11 2 UNEP, UNEP in the Regions. 1 by environmental degradation, the impacts of which are felt beyond the confines of individual countries. No country can single-handedly control pollution in international waters, transboundary movement of hazardous wastes and chemicals, or deal with such issues as environmental refugees, and disputes over trade restrictions for the purpose of environmental protection. Thus, there are functional requirements that several countries work together to find solutions to commonly shared environmental problems. Second, regional environmental cooperation is one of the major channels for promoting environmental security. Some researchers3 argue that environmental issues should be linked with economic and security considerations. That is, environmental degradation leads to an unstable economy and social unrest, and could result in regional conflicts. Promoting multilateral cooperation on environmental issues may be one of the most effective ways to avoid such conflicts. Others believe that advancement of regional cooperation on the environment is beneficial to fostering mutual trust and creation of peace in the region. The early stages of Long-Ranged Transboundary Air Pollution (LRTAP) regime formation endorsed by the United Nations Economic Commission for Europe (UN/ECE) can be cited as one of the encouraging examples.4 Third, potential exists for regional geopolitical units offering an appropriate framework for rational utilization of the region’s natural resources and mitigation of the effects of environmental degradation. Thus, regional arrangements often address collective efforts on not only a regional or subregional scales, but also global or national-scale on common issues. For example, the European Union (EU) is currently committed to meeting their greenhouse gas (GHG) emission reduction targets jointly at the regional level by agreeing on and implementing a set of differentiated national targets. Similarly, in Asia the need for a regional approach to adaptation to climate change has been identified as one of the priority areas of concern by several countries that have completed a regional study under the Asian Least-Cost Greenhouse Gas Abatement Strategy (ALGAS) Project.5 Finally, it is worth noting that Agenda 21,6 adopted at UNCED, has played a significant role in promoting regional cooperation on environment and development. In each of its priority programme areas, Agenda 21 clarified the role of regional and subregional organizations in supporting and supplementing national efforts. Since Agenda 21 represents a global consensus and political commitment at the highest political level, many governments and some local governments in Asia and the Pacific have prepared their own national or local Agenda 21, and have facilitated cooperative efforts in collaboration with international and regional organizations. 3 The Current Status of Multilateral Initiatives on Environmental Cooperation This section deals with cases of environmental cooperation in
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